苦口未必是良藥？2030雙語政策對偏鄉教育之影響——以花蓮縣為例

Abstract

我國政府於2018年底發布「2030雙語國家政策」，企圖透過加強全民英語水準，提升臺灣的國際競爭力。「雙語教育」是政策的重要一環，中央和地方政府卯足全力建置雙語學校，短短三年就達到千所。 然而本報導發現，現有的雙語政策關鍵績效指標（KPI）主要針對雙語學校增加的數量，缺乏考慮教學品質與學生需求。且中央與地方在執行方案、師資考選機制上未有共識，補助資源也有落差，縣市依據自身量能各自規畫，可能造成更大的城鄉差距。 本報導以花蓮縣為例，於2022年3月～9月間，採訪39位國中小教職員、專家學者、政策制定者，調查我國雙語政策對偏鄉教育的影響。報導發現雙語教育凸顯出偏鄉地區既有的人力困境，包括師資不足、流動率高、教師進修機會因地處偏遠受阻……等等。在這些條件下，偏鄉難以建立穩定的雙語教學模式。 此外，偏鄉學生家庭支持系統低落、既有的英文學力落差等問題仍然存在，政策卻沒有先試圖改善現有問題，難以期待雙語發揮速效。而政府期待透過補助平板電腦等行動載具弭平落差，但載具不等於自學能力，善用數位教學師資對孩子而言更是關鍵。 本報導主張，偏鄉雙語教育應重質而非重量，政策制定者需重新檢討現有的衡量標準，並務實地從鬆綁教育人力法規、擴大公費生等招募管道來解決偏鄉人力問題，再討論成效。政府與各界不可過度美化「英語力等於國際競爭力」的想像，讓雙語影響正常學科學習。專家提醒，雙語教育仍需回歸教育本質：讓孩子聽得懂、有自信地說英文，同時能保有適性揚才的機會。

Taiwan released the “2030 Bilingual” policy at the end of 2018 to raise the level of English proficiency among the public and improve the nation’s overall competitiveness. Under the guideline, bilingual education plays a crucial part in the policy, as both central and local governments are determined to establish bilingual schools and reach 1,000 more within three years. However, this report discovered that the key performance indicators (KPIs) for the current bilingual policy primarily highlight increasing the number of bilingual schools, lacking consideration for teaching quality and students’ learning demands. Moreover, central and local governments could not reach consensus on policy implementations and teachers’ selecting mechanisms. If local governments are asked to design bilingual education responses according to their own resources, this may further widen the urban-rural divide. This report investigates the impact of Taiwan’s bilingual policy on education in remote areas, using Hualien County as an example. From March to September 2022, 39 primary and secondary school teachers, experts, scholars, and policy-makers were interviewed. This report discovered that the implementation of the bilingual policy exposes several existing problems in rural education, including insufficient teachers, high turnover rate and educators facing obstacles seeking better training. Under such circumstances, building a stable bilingual teaching model could be difficult for remote areas. Additionally, related policies should resolve existing problems instead of expecting bilingual policy to take off quickly as issues including poor family support system and English learning gap persist among students in remote areas. The government hopes to bridge educational gaps by providing mobile devices, yet using mobile devices does not equate with students’ self-learning ability; instead, teachers that handle digital resources well are more important for kids. The report argues that bilingual education in remote areas should place quality over quantity by re-examining current standards, loosening regulations on the number of academic staff, and expanding the number of state-financed teacher candidates in remote areas to solve problems practically. The Taiwanese government and society should not view “international competitiveness” only in terms of “English proficiency”, which could hinder students’ absorption of knowledge. Meanwhile, experts suggest that bilingual education should highlight the importance of comprehension: Let children understand and speak English with confidence, and at the same time retain the opportunity to show their talents.